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1 Import Risk Analysis Handbook Canberra, 2003

2 Commonwealth of Australia 2003 This work is copyright. You may download, display, print and reproduce this material in unaltered form only (retaining this notice) for your personal, non-commercial use or use within your organisation. Apart from any use as permitted under the Copyright Act 1968, all other rights are reserved. Requests for further authorisation should be directed to the Commonwealth Copyright Administration, Intellectual Property Branch, Department of Communications, Information Technology and the Arts, GPO Box 2154, Canberra ACT 2601 or by to Preferred way to cite this publication: Biosecurity Australia 2003, Import risk analysis handbook, Agriculture, Fisheries and Forestry Australia, Canberra ISBN Additional copies of the handbook The Import Risk Analysis Handbook is available in printed and electronic form. Electronic copies (in pdf format) are available on the Biosecurity Australia website: If you experience problems accessing the file on the website or wish to obtain a hard copy, please contact: Biosecurity Development and Evaluation Biosecurity Australia GPO Box 858 CANBERRA ACT 2601 Telephone: Facsimile:

3 Contents 1. Purpose 4 2. Biosecurity policy 5 3. Administrative process for import risk analysis 8 4. Steps in import risk analysis 11 Annex 1: Contact information 19 Annex 2: Import risk analysis team 21 Annex 3: Appeal to Deputy Secretary 24 Annex 4: Import Risk Analysis Appeal Panel 25 Annex 5: Stakeholder register 28 Annex 6: Public file 29 Annex 7: Import risk analysis flowchart 30 Annex 8: Agreement on the Application of Sanitary and Phytosanitary Measures (WTO SPS Agreement) 31 Annex 9: Acronyms and definitions 44 The import risk analysis flowchart has been reproduced on the inside back cover to assist readers. 3

4 purpose 1. Purpose This Import Risk Analysis Handbook sets out the process that Biosecurity Australia follows to undertake an Import Risk Analysis (IRA). The handbook builds on the 1998 AQIS Import Risk Analysis Process Handbook that was part of the Government response to recommendations of the Australian Quarantine Review Committee 1. The revisions to the process are based on Biosecurity Australia's experience with Import Risk Analysis, the results of relevant parliamentary reviews, advice from the Quarantine and Exports Advisory Council (QEAC) and comments from stakeholders. 1 The Australian Quarantine Review Committee s report was issued in 1996 and is also referred to as the Nairn Report after its chairperson. 4

5 biosecurity policy 2. Biosecurity policy 2.1 Australia's biosecurity policy Objectives The objective of the Australian biosecurity policies referred to in this handbook is the prevention or control of the entry, establishment or spread of pests and diseases that will or could cause significant damage to human beings, animals, plants, other aspects of the environment, or economic activities. Biosecurity Australia develops biosecurity policies for matters that fall under the responsibility of the Department of Agriculture, Fisheries and Forestry Australia (AFFA) 2. Australia has unique and diverse flora and fauna, has valuable agricultural industries and is relatively free from serious pests and diseases. Therefore, successive Commonwealth Governments have maintained a conservative but not a zero-risk approach to the management of biosecurity risks. This approach is consistent with the World Trade Organization Agreement on the Application of Sanitary and Phytosanitary Measures (the SPS Agreement) and is evident in the range of biosecurity related activities, including policies on imported commodities, procedures at the border, and operations against incursions of pests and diseases. The SPS Agreement (see Annex 8) defines the concept of an 'appropriate level of sanitary or phytosanitary protection (ALOP)' as the level of protection deemed appropriate by a WTO Member in establishing a sanitary or phytosanitary measure to protect human, animal or plant life or health within its territory. In setting its ALOP, a WTO Member should take into account the objective of minimising negative trade effects. Like many other countries, Australia expresses its ALOP in qualitative terms. Australia's ALOP, which reflects community expectations through government policy, is currently expressed as providing a high level of sanitary or phytosanitary protection aimed at reducing risk to a very low level, but not to zero Risk management and SPS measures Australia's plant and animal health status is maintained through the implementation of measures to facilitate the importation of products while protecting the health of people, animals and plants. Australia's approach to addressing requests for imports of animals, plants and their products, where there are biosecurity risks, is to draw on existing sanitary and phytosanitary measures for similar products with comparable risks. However, where measures for comparable biosecurity risks have not previously been established, a thorough assessment will be necessary to identify the risks to Australia and determine what sanitary and phytosanitary measures are needed to reduce those risks to a level consistent with Australia's ALOP. 2 Primary policy responsibility for human biosecurity, including food safety, rests with the Department of Health and Ageing. 5

6 biosecurity policy 2.2 Biosecurity Australia Biosecurity Australia is part of the Commonwealth Department of Agriculture, Fisheries and Forestry Australia (AFFA). It was established as an entity separate from the Australian Quarantine and Inspection Service (AQIS) in October 2000 to distinguish biosecurity policy development and export technical market access negotiations from the operational work of AQIS. AQIS's responsibilities include ensuring border quarantine security, issuing import permits and providing export health certification. Biosecurity Australia is responsible for: developing new biosecurity (sanitary and phytosanitary) risk management measures and reviewing existing measures for the importation of live animals and plants, and animal and plant products working with AQIS on the implementation of biosecurity measures conducting technical negotiations with counterpart agencies in other countries, to develop new market access and maintain and improve upon existing market access for Australian live animals and plants, their genetic material and plant products participating in the activities of the international standard-setting organisations relevant to biosecurity working with various Commonwealth and State/Territory organisations in relation to the continuum of quarantine. Biosecurity Australia has considerable experience in import risk analysis. Its work on import risk analysis also involves experts from bodies such as relevant State and Territory agencies, the Commonwealth Scientific and Industrial Research Organisation (CSIRO) and universities. As part of import risk analysis, Biosecurity Australia, works in partnership with the States and Territories to address regional differences in pest status and risk within Australia, and consequent sanitary and phytosanitary measures. This involves consultation with relevant State and Territory agencies throughout the course of an import risk analysis (IRA), with an emphasis on identifying and resolving issues relating to regional differences in pest status and risk early in the IRA process. 2.3 Australian legislation The Australian quarantine system is supported by Commonwealth, and State and Territory quarantine laws. Under the Australian Constitution, the Commonwealth Government does not have exclusive power to make laws in relation to quarantine, so Commonwealth and State laws on quarantine co-exist. However, under section 109 of the Constitution, if a State law is inconsistent with a Commonwealth law, the Commonwealth law prevails and the State law is invalid to the extent of the inconsistency. Protection of Australia's human, animal and plant life requires the application of controls, established by the Commonwealth, at Australia's international borders. Commonwealth quarantine laws are contained in the Quarantine Act 1908 and in its subordinate legislation found in the Quarantine Proclamation 1998 and the Quarantine Regulations

7 biosecurity policy Responsibility for human health under the Quarantine Act 1908 rests with the Department of Health and Ageing. Biosecurity Australia regularly consults with that Department. The Quarantine Act requires the Director of Animal and Plant Quarantine to ensure that environmental factors are considered in the decision making process. A Memorandum of Understanding (MOU) is in place between Biosecurity Australia and Environment Australia to facilitate input of advice on environmental matters into the import risk analyses. 2.4 International agreements and standards The process set out in this Handbook conforms to Australia's international obligations. These derive, inter alia, from the SPS Agreement and other World Trade Organization (WTO) Agreements and specific international guidelines and standards on risk analysis developed under the International Plant Protection Convention (IPPC) and by the Office International des Epizooties (OIE the World Organization for Animal Health). Australia bases its national measures on international standards where they exist and where they deliver the appropriate level of protection from pests and diseases. However, where such standards are not appropriate to Australia's level of biosecurity protection, or relevant standards do not exist, Australia exercises its right under the SPS Agreement to impose appropriate measures, justified on scientific grounds and supported by risk analysis. The procedures described in this Handbook are consonant with Australian/New Zealand Standards AS/NZS 3931:1998 (Risk analysis of technological systems application guide) and AS/NZS 4360:1999 (Risk management). 2.5 Notification obligations Under the transparency provisions of the SPS Agreement, WTO members are required to notify other members through the WTO secretariat of proposed new sanitary or phytosanitary regulations, or changes to existing regulations, that are not substantially the same as the content of an international standard and that may have a significant impact on international trade, at a stage when any comments can be taken into account. Australia's practice is to notify Draft IRA reports and to allow a 60-day period for comment. Australia also notifies to the WTO the outcome of the IRA process. 7

8 administrative process for import risk analysis 3. Administrative process for Import Risk Analysis 3.1 What is Import Risk Analysis In animal and plant biosecurity, import risk analysis identifies the pests and diseases relevant to an import proposal, assesses the risks posed by them and, if those risks are unacceptable, specifies what measures should be taken to reduce those risks to an acceptable level. These analyses are conducted via the administrative process described in this Handbook. 3.2 How the Process is started Biosecurity Australia may initiate development of new biosecurity policy or review an existing policy in response to: a proposal to import a plant, an animal, a good derived from plants or animals, a micro-organism, or commodities which present a biosecurity risk the identification of a changed risk profile or the receipt of new information by Biosecurity Australia or AQIS, or an application to AQIS for an import permit. Proposals and applications may come from individuals, companies, organisations, government agencies or governments (both in Australia and overseas). Where it is apparent that the biosecurity risks associated with an import proposal or application are similar to those addressed by an existing policy, an IRA may not be considered necessary. 3.3 When are IRAs undertaken? Following from the situations described in 3.2 above, Biosecurity Australia may undertake an IRA if: there is no relevant existing biosecurity measure for the good and pest/disease combination; or a variation in established policy is desirable because pests or diseases, or the likelihood and/or consequences of entry, establishment or spread of the pests or diseases could differ significantly from those previously assessed. 3.4 Function of the handbook This handbook sets out the process supporting the Government's biosecurity objectives, including: biosecurity measures based on sound science 8

9 administrative process for import risk analysis alignment of accepted risks with Australia's ALOP biosecurity measures which comply with Australia's domestic legislation and international obligations. 3.5 Variation of the Process In circumstances where there is a significant change in the basis for an IRA, such as development of a new relevant international standard, the Executive Manager of Biosecurity Australia may determine that the conduct of an IRA should be varied. Biosecurity Australia may terminate an IRA at any stage on its own initiative or if a proponent/applicant requests that it be terminated. There will be occasions when variation of the administrative procedures in this handbook is necessary. Stakeholders are informed of such circumstances and the actions taken as soon as practicable. See Annex 4 for appeal rights. 3.6 Economic issues In keeping with the scope of the Quarantine Act 1908 (see Sections 2.2 and 3.1 of this handbook) and Australia's obligations as a member of the WTO, economic considerations are taken into account only in relation to matters arising from the potential direct and indirect impact of pests and diseases that could enter, establish or spread in Australia as a result of importation. The potential competitive economic impact of prospective imports on domestic industries is not within the scope of IRAs. 3.7 Biosecurity Australia: internal methodologies Biosecurity Australia has internal processes to assist those conducting Import Risk Analysis work. These include the production of a technical manual on the methodologies available for the conduct of IRAs, called the Guidelines for Import Risk Analysis. The structured approach described in these Guidelines is consistent with Australian legislation and Government policy, the requirements of the WTO SPS Agreement, and the relevant international plant and animal health standards developed under the IPPC and by the OIE. 3.8 Communication with stakeholders Biosecurity Australia maintains a register of stakeholders to assist effective consultation and communication. Stakeholders comprise government agencies, individuals, community or industry groups or organisations, in Australia or overseas, including the proponent/applicant for a specific proposal, having an interest in the subject matter of an IRA. The register (see Annex 5) enables stakeholders to indicate the IRAs in which they are interested, and the way they prefer to receive information. However, if a person or organisation chooses not to be placed on the stakeholder register, they may access information on the IRA work program and on the status of IRAs through 9

10 administrative process for import risk analysis the Biosecurity Australia website: Copies of completed IRAs and other IRA documents are available on the website. 3.9 Public file At the commencement of each IRA, Biosecurity Australia establishes a public file to contain non-confidential submissions and other technical documentation. Each public file is held at Biosecurity Australia's office in Canberra. Documents may be accessed by appointment during business hours for perusal and copying, and information in electronic form is available to stakeholders on request. Stakeholders are encouraged to make submissions electronically to assist in maximising access to documents. Further details of the material to be placed on each public file are in Annex Other assessment processes This handbook does not describe procedures used to assess animals or plants for their potential to become pests, or organisms imported as biological control agents, or the evaluation of traits conferred on a plant or animal species by genetic manipulation. Information on methodology and procedures for these assessments is available from Biosecurity Australia (see Annex 1 for contact details). Under the Environment Protection and Biodiversity Conservation Act 1999, Environment Australia may assess proposals for the importation of live specimens and their reproductive material. Such an assessment may be used or referred to by Biosecurity Australia in its analyses. 10

11 steps in import risk analysis 4. Steps in Import Risk Analysis The flowchart at Annex 7 summarises the sequence of the steps set out here. Initiation 1. Submission of import proposals Requests for market access may be submitted directly to Biosecurity Australia (usually by the relevant government authorities of the country seeking to export), or may arise as the result of an application to AQIS for an import permit. 2. Policy development or review initiated by Biosecurity Australia Biosecurity Australia may initiate the development or review of policy, for example, where there are changed risk profiles or upon the receipt of new information by Biosecurity Australia or AQIS. Scheduling and scoping 3. IRA work program Biosecurity Australia examines proposals to determine which ones require an IRA. Many proposals will not require an IRA to be conducted. Those requiring an IRA will be scheduled, taking into account factors such as the resources available (Biosecurity Australia staff as well as suitably qualified external experts); the complexity of the IRA (e.g. the number and type of pests and diseases that need to be considered); the availability of information necessary to support the analysis; and the quality, completeness and timing of responses by the proponent country to requests for information. Biosecurity Australia seeks to address proposals from the same country in the order preferred by that country. Biosecurity Australia routinely advises stakeholders about its IRA work program via , letter, the website and Biosecurity Australia News. This advice describes the status of IRAs currently underway and those that Biosecurity Australia expects to commence in the near future. Provision is made for changing priorities, research needs and resource constraints. Biosecurity Australia welcomes stakeholder comments at any time on its work program and priorities. At the time a proposal or application requiring an IRA is lodged, it need not contain the detail required for Biosecurity Australia to commence work. However, before a specific risk analysis is commenced, Biosecurity Australia may seek more information from the proponent, including technical information to confirm the purpose and scope of the proposal. 11

12 steps in import risk analysis 4. Consultation with States, Territories and other Commonwealth agencies States and Territories have a special role in policy development, flowing from their responsibilities for managing animal and plant health within Australia. There is a partnership approach to managing risks, both for the movement of product into Australia or for trade within Australia. The 1995 Memorandum of Understanding (MOU) between the Commonwealth and States/Territories on Animal and Plant Quarantine Measures records the parties' commitments. The partnership approach is particularly important in the IRA process, because close cooperation at all stages of an IRA is needed to ensure that information pertinent to a specific State or Territory is considered in the national risk analysis. Biosecurity Australia therefore works closely with relevant State and Territory agencies on the IRA work program and on arrangements for IRAs about to commence. This reflects the MOU and the continuum of responsibilities for biosecurity. For particular IRAs, the scope, the likely risks, and the expertise that may be required to address those risks will also be discussed. The States and Territories may identify specific technical issues that they believe should be considered during an IRA, including regional differences in pest and disease status and risk, and may nominate officers with relevant expertise who could participate in the IRA. Biosecurity Australia works closely with Environment Australia on issues relevant to that portfolio. Biosecurity Australia also consults with other Commonwealth agencies where they have responsibilities relevant to the IRA, e.g. Food Standards Australia New Zealand (FSANZ) and the Department of Health and Ageing. 5. Scope, approach and IRA Team membership An IRA team conducts each IRA. Membership of the team is governed by the availability the required technical expertise within Biosecurity Australia and, if necessary, the extent to which expertise outside Biosecurity Australia may be required. For all IRAs, the IRA team is chaired by a senior official from Biosecurity Australia or a related group in AFFA. It is important that IRA team members do not have vested interests in relation to the IRA, that they are able to exercise sound scientific judgement, and that the process is objective and seen to be objective. Details of the terms of reference, operating procedures and considerations on membership for IRA Teams are at Annex 2. Biosecurity Australia provides administrative and secretarial support for IRA teams. Biosecurity Australia determines the intended scope of the IRA with the proponent/applicant, that is, the goods to be assessed and the source (zone or country or countries of origin). The goods and source(s) need to be defined to allow an accurate list of relevant pests and diseases to be drawn up for categorisation. Biosecurity Australia may determine that, for reasons of efficiency or to address related proposals or applications, the scope of the IRA should be varied to include or exclude other commodities and/or other sources. 12

13 steps in import risk analysis Biosecurity Australia may decide to involve third parties to assist in conducting IRAs. In such cases, Biosecurity Australia assesses the documents produced by a third party, their scientific basis, and whether they conform to the Government's objectives for biosecurity. 6. Initial consultation with registered stakeholders When work on an IRA is about to commence, Biosecurity Australia consults with registered stakeholders via a memorandum that includes: the proposed scope and approach of the IRA the required expertise where appropriate, an invitation for nominations for external membership of the IRA team. The information is placed on the Biosecurity Australia website. Stakeholders have 30 days after the memorandum is issued to provide comments and membership nominations to Biosecurity Australia. Submissions received are placed on the public file created for the IRA unless a request for confidentiality is made (see Annex 6). 7. Decision on scope, approach and membership Biosecurity Australia considers submissions received from stakeholders and will hold discussions with stakeholders when the nature of matters raised in submissions makes it appropriate. The Executive Manager of Biosecurity Australia then decides the scope for the IRA, and membership of the IRA team, identifying the issues raised by stakeholders and the manner in which they have been addressed. Biosecurity Australia advises registered stakeholders of the outcome (including the reasons for decisions), and places the information on the Biosecurity Australia website and a copy of the decision on the public file. 8. Provision for stakeholder appeal A stakeholder may appeal to a Deputy Secretary of AFFA against the Executive Manager's decision on the scope, approach and IRA team membership within 15 days of its publication. In lodging an appeal, stakeholders must give reasons for their appeal. Receipt of appeals will be acknowledged. Matters taken into account in considering an appeal are given in Annex Determination of appeal The Deputy Secretary of AFFA considers the appeal, makes a determination and notifies the appellant(s) within 45 days of the closing date for appeals. The determination includes reasons. If an appeal is allowed, the IRA returns to step 5 (above) in respect to those issues for which the appeal was allowed. If the appeal is disallowed, the IRA team will commence work on the IRA. 13

14 steps in import risk analysis Biosecurity Australia communicates the outcome of the appeal to registered stakeholders, and the information is placed on the Biosecurity Australia website and the public file. Risk assessment 10. Initial work After an IRA team is established, it liaises with the proponent/applicant about the technical information needed to enable an IRA to proceed. If there is insufficient information, the IRA may be delayed until the information is received. The IRA team commences work by: determining a work program for the IRA establishing a risk communication strategy, including identifying relevant stakeholder groups preparing a technical issues paper. The technical issues paper: summarises background and administrative matters pertaining to the IRA lists the pests and diseases that the IRA team has identified as being potentially associated with the importation of the goods categorises the pests and diseases (in some cases in a preliminary manner) according to whether they need to be considered in the subsequent risk assessment. The technical issues paper may also include an outline of the additional tasks identified at that stage, e.g. for technical working groups (TWGs) and consultants a list of potential independent peer reviewers. Pests and diseases are categorised conservatively. If there is doubt about their biosecurity significance, they are included for risk assessment. The IRA team may also commission, as appropriate, consultancies and TWGs to examine and report on specific technical or economic issues. 11. Consultation on the technical issues paper Biosecurity Australia distributes the technical issues paper to registered stakeholders and places it on the Biosecurity Australia website. Stakeholders have 60 days to submit comments. This is the first formal request for detailed technical input into the IRA. Submissions will be sought on: 14

15 steps in import risk analysis the completeness of the list of pests and disease agents and their categorisation the list of potential independent peer reviewers any additional work identified. The IRA team may meet with stakeholders to discuss matters raised in submissions, if appropriate. Submissions received (unless otherwise requested), are placed on the public file, as are the IRA team's response to the issues raised. The team may conduct field trips to relevant regions, in Australia and/or potential source areas to investigate trading patterns, industry practices and procedures relevant to the assessment of risk. 12. Preparation of Draft IRA Report The IRA team, on the basis of its research, and using input from TWGs and consultants as necessary, prepares a Draft IRA Report, taking into account submissions received on the technical issues paper and other input derived through consultation with stakeholders. As at other stages, relevant State and Territory agencies are consulted on regional pest status and risk issues. The draft report: confirms the pests and diseases being assessed describes the major pathways by which these could enter, establish or spread in Australia identifies, for each pest and disease on individual pathways, the likelihood of its entry, establishment or spread, and the harm (consequences) that would result specifies whether the resulting risks require mitigation (i.e., to bring risk within Australia's ALOP) in cases where the risks are rated as unacceptable, presents an evaluation of technically-feasible risk management measures to determine whether the risk can be successfully mitigated to achieve Australia's ALOP includes a preliminary view of the appropriate risk management options. 13. Consultation with stakeholders on Draft IRA Report Biosecurity Australia distributes the Draft IRA Report to stakeholders and places it on the Biosecurity Australia website. Stakeholders have 60 days to submit comments. The IRA team may meet with stakeholders to discuss the draft report. Submissions received are placed on the public file unless a request for confidentiality is made. 15

16 steps in import risk analysis 14. Notification to WTO When the Draft IRA Report is distributed to stakeholders, Biosecurity Australia's practice is to notify the WTO under the established procedures. The notification includes advice on the time by which comments should reach Biosecurity Australia. 15. Independent peer review Before finalising either the draft or the Final IRA Report, the IRA team may seek advice from independent peer reviewers. Reporting 16. Preparation of Final IRA Report The IRA team, with input from TWGs and consultants as necessary, prepares a Final IRA Report. They consider submissions received on the draft into account and consult with stakeholders and the peer reviewers as appropriate. If new information comes to light that may significantly affect the analysis, or if the IRA team identifies the need to make significant changes to the analysis in finalising the IRA Report, the IRA team, in consultation with the Executive Manager of Biosecurity Australia, may consider whether it would be appropriate to prepare a revised Draft IRA Report for stakeholder consultation. In this case, Biosecurity Australia distributes the revised Draft IRA Report to stakeholders and places it on the Biosecurity Australia website. Stakeholders are given 60 days to submit comments. The Final IRA Report draws all issues together and includes: the IRA team's responses to the issues raised an inventory of any significant changes to the Draft IRA Report, with reasons for those changes information on the issues raised by independent peer reviewers and the IRA team's responses recommendations on the appropriate risk management options. 17. Consideration of Final IRA Report The IRA team presents the Final IRA Report to the Executive Manager of Biosecurity Australia. In considering the recommendations in the Final IRA Report, the Executive Manager of Biosecurity Australia must be satisfied that the IRA has been conducted in accordance with the process described in the handbook, and the recommendations: are reasonable in the light of the evidence 16

17 steps in import risk analysis meet the Government's objectives for biosecurity are consistent with Australian legislation accord with Australia's international rights and obligations. The Executive Manager of Biosecurity Australia may refer the report to the IRA team for further consideration, if this is deemed necessary. 18. Consultation with States and Territories Biosecurity Australia consults the chief executive officers of relevant State and Territory agencies on the proposed outcomes of the IRA, including regional pest status and risk issues, and aspects of joint responsibility arising from the IRA team's recommendations. The Executive Manager of Biosecurity Australia may refer the report to the IRA Team for further consideration if this is deemed necessary as the result of this consultation. 19. Release of Final IRA Report and recommendation for a policy determination In releasing the Final IRA Report and recommending a policy determination, which will set the parameters for import, the Executive Manager of Biosecurity Australia takes into account: the recommendations of the IRA team outcomes of discussions with the relevant State and Territory chief executive officers Australian legislative requirements international obligations any other relevant information or consideration. Biosecurity Australia distributes the Final IRA Report and the recommendation for a policy determination to the proponent/applicant and registered stakeholders. The Report and recommendations are placed on the Biosecurity Australia website and on the public file, and is notified in Biosecurity Australia News. 20. Provision for appeals on Final IRA Report Stakeholders are given 30 days from the publication of the recommendation for a policy determination to lodge an appeal in writing with the Import Risk Analysis Appeals Panel (IRAAP) a body independent from Biosecurity Australia on one or both of the following grounds: there was a significant deviation from the process set out in the Import Risk Analysis Handbook that adversely affected the interests of a stakeholder a significant body of scientific information relevant to the outcome of the IRA was not considered. 17

18 steps in import risk analysis In lodging appeals, stakeholders must give reasons for their appeal. The terms of reference for the IRAAP are at Annex 4. If there are no appeals within 30 days, the process is complete and the recommended policy will be submitted to the Director of Animal and Plant Quarantine for determination. 21. Appeal determination The IRAAP will consider any appeal and report its findings to the appellant(s) and the Director of Animal and Plant Quarantine within 45 days of the closing date for appeals. If the appeal is disallowed, the process is complete. If an appeal is allowed, the IRAAP may advise the Executive Manager of Biosecurity Australia on how to overcome the identified deficiencies. This may involve minor amendments to the Final IRA Report, significant revision or further stakeholder consultation. The Executive Manager of Biosecurity Australia considers any advice from the IRAAP in deciding how to proceed. The Executive Manager of Biosecurity Australia advises the appellant(s) and the IRAAP of the outcomes of further work undertaken to address deficiencies. This information is also placed on the Biosecurity Australia website and on the public file. Final policy determination 22. Notification of final policy determination When the above processes are complete, the Director of Animal and Plant Quarantine makes the final policy determination. Biosecurity Australia notifies the proponent/applicant, registered stakeholders and the WTO of the final policy determination. The Final IRA Report, the policy determination, the outcomes of any appeals and Biosecurity Australia's responses to issues raised, are provided to the proponent/applicant and registered stakeholders, and placed on the Biosecurity Australia website and on the public file. Information on the final policy determination is also published in Biosecurity Australia News. Biosecurity Australia notifies AQIS of the new policy and liaises with AQIS on implementation. 18

19 contact information Annex 1: Contact information Executive Manager Biosecurity Australia, and the appeals address Postal address: Biosecurity Australia GPO Box 858 CANBERRA ACT 2601 AUSTRALIA Telephone Facsimile: Street address: Edmund Barton Building Broughton Street BARTON ACT 2600 AUSTRALIA Animal Biosecurity import risk analyses Postal address: Animal Secretariat Animal Biosecurity Biosecurity Australia GPO Box 858 CANBERRA ACT 2601 AUSTRALIA Telephone Facsimile: Street address: Edmund Barton Building Broughton Street BARTON ACT 2600 AUSTRALIA 19

20 contact information Plant Biosecurity import risk analyses Postal address: Technical and Administrative Services Plant Biosecurity Biosecurity Australia GPO Box 858 CANBERRA ACT 2601 AUSTRALIA Telephone Facsimile: Street address: Edmund Barton Building Broughton Street BARTON ACT 2600 AUSTRALIA Agriculture Fisheries and Forestry Australia Postal address: Agriculture Fisheries and Forestry Australia GPO Box 858 CANBERRA ACT 2601 AUSTRALIA Telephone: Street address: Edmund Barton Building Broughton Street BARTON ACT 2600 AUSTRALIA 20

21 import risk analysis team Annex 2: Import risk analysis team A team of experts conducts import risk analyses. The outcome of the IRA team's work is a Final IRA Report containing recommendations for consideration by the Executive Manager of Biosecurity Australia. Terms of reference The standard terms of reference for an IRA team are to: develop the work program for the IRA establish a risk communication strategy determine whether technical working groups (TWGs), and/or consultants will be required to collate information, conduct research, undertake assessments (technical, environmental, economic) or otherwise, or to assist the IRA team on specific issues; and, if so, determine their terms of reference and oversee their work consult as appropriate to obtain a full and accurate understanding of the relevant issues use internal and independent peer review if appropriate in preparing papers and reports take appropriate account of Australia's ALOP and quarantine legislation, and Australia's rights and obligations consider stakeholder submissions in preparing papers and reports produce a technical issues paper for consultation produce a Draft IRA Report for consultation produce other papers and reports as necessary for efficient conduct of the IRA produce a Final IRA Report for consideration by the Executive Manager of Biosecurity Australia provide additional advice and information as requested by the Executive Manager of Biosecurity Australia. Membership The IRA teams vary in numbers, depending on expertise required. Team members collectively provide an appropriate combination of experience and expertise in: risk analysis as it relates to biosecurity science and regulation animal and/or plant pests and diseases industry and/or commercial processes and practices other disciplines relevant to the proposal or application under consideration. 21

22 import risk analysis team Membership depends on whether the required technical expertise is available in Biosecurity Australia. Biosecurity Australia sources outside expertise as required. Such expertise may be drawn from other government agencies (Commonwealth, State and Territory), industry, scientific organisations, academia, private consultants and the general public. A senior officer from Biosecurity Australia or a related group in AFFA chairs the IRA team. The Chair has experience in biosecurity policy, and a sound knowledge and understanding of Australian quarantine legislation, the Government's objectives for biosecurity, and Australia's international rights and obligations. Biosecurity Australia provides administrative and secretarial support. In finalising IRA team membership, Biosecurity Australia assesses prospective team members against the following criteria: experience and expertise relevant to the import proposal under consideration proven capacity in a relevant scientific field knowledge of government processes and the national and international context of the IRA absence of conflict of interest; it being essential that: prospective external team members do not, and are perceived not to, have a conflict of interest they declare that their sources of income and/or representational responsibilities and/or personal or other interests do not compromise their capacity to provide impartial and independent advice any other consideration relevant to particular circumstances of the IRA. If, in the course of an IRA, an external member of the IRA team ceases to be available, or if for another reason the Executive Manager of Biosecurity Australia believes it is necessary to change the membership of the IRA team, the Executive Manager may decide, in consultation with key stakeholders, to make such changes as are appropriate to ensure that the work of the IRA can be satisfactorily completed. In this event, stakeholders will be advised of the changes at the next consultation step. Operating procedures The IRA team conducts the IRA with support from Biosecurity Australia as needed. Biosecurity Australia produces papers and reports, and circulates these reports to stakeholders. The IRA team operates within the operational and financial constraints of Biosecurity Australia. Biosecurity Australia, in consultation with the IRA team, agrees on a budget and the resources needed to conduct the work program efficiently. The agreed budget covers such items as meetings of the IRA team, research, members' costs for face-to-face meetings with stakeholders and publications. The budget may need to be reviewed and adjusted as work progresses. 22

23 import risk analysis team Biosecurity Australia contracts external members for the duration of the IRA in accordance with government financial guidelines. The IRA team determines whether additional work will be required and the most effective method of carrying out that work, for example by TWGs and/or consultants. In deciding to use TWGs or in commissioning consultancies, the IRA team takes into account resource and time constraints, and relative cost effectiveness. Each TWG has a Biosecurity Australia member with knowledge of risk analysis techniques and the context in which the risk analysis is being conducted. 23

24 appeal to deputy secretary Annex 3: Appeal to Deputy Secretary Stakeholders may appeal to the Deputy Secretary of AFFA against the decision of the Executive Manager of Biosecurity Australia on the proposed scope and approach of the IRA and the required expertise, including membership of the IRA team. The appeal must be made within 15 days of the publication of the decision. In lodging an appeal, stakeholders must give reasons for their appeal. The Deputy Secretary of AFFA considers the appeal, makes a determination and notifies the appellant(s) within 45 days of the closing date for appeals. Contact details Import Risk Analysis Appeals Deputy Secretary Agriculture, Fisheries and Forestry Australia GPO Box 858 CANBERRA ACT 2601 Matters the Deputy Secretary will take into account In making a determination on the appeal, the Deputy Secretary considers: whether the scope of the IRA is reasonable (with regard to the proposal or application, and any current related work) and is an efficient use of public resources whether the nominated IRA team membership will provide appropriate expertise Australian legislation and Government policies Australia's rights and obligations as a Member of the WTO any other matter that the Deputy Secretary may consider relevant. 24

25 import risk analysis appeal panel Annex 4: Import Risk Analysis Appeal Panel The Chair of the Import Risk Analysis Appeal Panel convenes the IRAAP when an appeal is received that provides prima facie evidence that there has been a material deficiency or failure falling within the IRAAP's terms of reference. Stakeholders have 30 days from the publication of the recommendation for a policy determination to lodge an appeal in writing. The Chair advises the appellant(s) and the Executive Manager, Biosecurity Australia through the IRAAP Secretariat of the Chair's decision on whether the appeal warrants consideration by the IRAAP. If consideration is warranted, the proponent of the import proposal is also advised. Contact details The IRAAP Secretariat, which is provided by AFFA but is not part of Biosecurity Australia, coordinates all IRAAP activities and handles all correspondence. Appeals should be made to: The Manager IRAAP Secretariat Agriculture, Fisheries and Forestry Australia GPO Box 858 CANBERRA ACT 2601 Facsimile: Grounds for appeal The IRAAP considers appeals, supported by a statement of reasons, based on one or both of the following grounds: there was a significant deviation from the process set out in the Import Risk Analysis Handbook that adversely affected the interests of a stakeholder a significant body of scientific information relevant to the outcome of the IRA was not considered. The IRAAP does not consider matters relating to: issues falling within the ambit of the appeal in step 8 (see Section 4) of the Import Risk Analysis Handbook the scientific merits of the IRA, other than in relation to a claim that a significant body of scientific information was not considered 25

26 import risk analysis appeal panel the merits of the risk management recommendations made by an IRA team or of the risk management conclusions reached by Biosecurity Australia. If new information relevant to the IRA is produced during the appeal process, the IRAAP may refer the information to the Executive Manager of Biosecurity Australia. Membership The IRAAP routinely comprises four members: Chair of Quarantine and Exports Advisory Council (Chair) Commonwealth Chief Veterinary Officer (CVO) / Chief Plant Protection Officer (CPPO) chosen according to the subject of the IRA) an officer from AFFA (from outside Biosecurity Australia) one other member of QEAC (nominated by the Chair). The Chair of QEAC, the CVO/CPPO or any other member of the IRAAP may nominate alternative members if they believe there may be a conflict of interest or perception of bias because they have been directly or indirectly involved in the IRA under appeal. Each IRAAP member is required to declare that their sources of income and/or representational responsibilities and/or personal and other interests would not prevent them from providing impartial and independent advice. Every effort is made to have the full IRAAP membership (or their alternatives) meet in person to consider an appeal to ensure a balanced discussion. Operating procedures When the Chair of the IRAAP decides that evidence presented by the appellant(s) warrants consideration by the IRAAP, the Chair consults with the Director of Animal and Plant Quarantine on: scope and timetable of the appeal IRAAP membership regarding, for example, issues of conflict of interest the likely need for access to particular expertise for appeals concerning whether a significant body of scientific or technical information relevant to the outcome of the IRA had not been considered. The IRAAP considers the appeal in the context of either or both of the criteria for the appeal, and reports its findings to the appellant(s) and the Director of Animal and Plant Quarantine, within 45 days of the closing date for appeals. The appellant(s) is advised if the IRAAP is unable to finalise the appeal within the 45 days. The IRAAP does not consider verbal submissions from any appellant unless they are determined by the IRAAP to be necessary to complement an appellant's written submission. 26

27 import risk analysis appeal panel Upholding of an appeal requires majority support. The Chair does not exercise a casting vote. If the appeal is allowed, the IRAAP may offer advice to the Executive Manager, Biosecurity Australia, on ways of overcoming the identified deficiencies. This may involve minor amendments to the Final IRA Report, or significant revision warranting further stakeholder consultation. 27

28 stakeholder register Annex 5: Stakeholder register Biosecurity Australia maintains a register of stakeholders to facilitate consultation and communication. A stakeholder is a government agency, individual person, community or industry group or organisation, whether in Australia or overseas, that has an interest in the subject matter of an IRA, including the proponent/applicant for a specific proposal. Interested parties wishing to be included in communications and consultation on a particular proposal or application, or generally, should complete and return a stakeholder registration form to Biosecurity Australia. When a biosecurity issue is being actively considered, stakeholders listed on the register with an interest in that issue will be contacted. More than one person within an organisation may register as a stakeholder, if a separate registration form is completed for each individual. The registration form (in Word and pdf format) may be downloaded via Completed registration forms should be mailed to: Stakeholder Register Administrator Biosecurity Australia Agriculture, Fisheries and Forestry Australia GPO Box 858 CANBERRA ACT 2601 Facsimile: In the event of difficulty accessing the file in the downloadable formats, a copy can be obtained from the Stakeholder Register Administrator. 28

29 public file Annex 6: Public file A public file containing non-confidential submissions and other technical documentation is established at the commencement of each IRA. Each public file is held at Biosecurity Australia's office in Canberra and documents may be accessed during business hours, by prior appointment, for perusal and copying. Submissions and other documentation in electronic form are made available to stakeholders on request. To maximise access to documents, stakeholders are encouraged to make submissions electronically. Where appropriate, documentation on the public file which is in electronic form is available on the AFFA website. A public file for an IRA contains the following non-confidential material: a table of contents the background to the import proposal determinations and decisions on procedural matters made by the Deputy Secretary and the Executive Manager of Biosecurity Australia during the conduct of the IRA documents publicly circulated by Biosecurity Australia during the IRA, including those providing advice and/or seeking input on: commencement of the IRA scope and approach for the IRA and composition of the IRA team appeals the technical issues paper and Draft and Final IRA Reports the recommendation for a policy determination and the final policy determination. relevant technical submissions and other correspondence This will not include a submission, or part of a submission, that a stakeholder indicates is confidential and is capable of being classified as such in accordance with the Freedom of Information Act, or which Biosecurity Australia reasonably considers may give rise to an action for defamation. Advice that confidential material has been received will be placed on the public file. correspondence raising relevant technical issues technical material used in the IRA, not available in the public domain and not subject to copyright a list of technical material used in the IRA but subject to copyright (titles of references only) AFFA's responses to submissions, including statements of reasons where appropriate, formal reports provided by a technical working group (TWG), consultant or peer reviewer 29

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